V Chinh sach thyc hien, ap dung phap luat, van dung hvong w&c trong quan ly xa hoi 6- nong thon: thuc trang va nhirng van de dat ra Phgm Hihi Nghi * Tdm tdt: Mufln quan ly xa hpi bdng
Trang 1V Chinh sach thyc hien, ap dung phap luat,
van dung hvong w&c trong quan ly xa hoi 6- nong thon:
thuc trang va nhirng van de dat ra
Phgm Hihi Nghi *
Tdm tdt: Mufln quan ly xa hpi bdng phap lugt va theo phap luat d n co mpt hf
thflng phap luat dly dii, dflng bp, cong khai, minh bach He thong phap lugt do phai dupc dua vao cupe song, phai dupc thuc hien, ap dung thi mdi t£io ra trat tu In djnh trong xa hpi, bao dam quyen con ngudi, quyen cong dan, bao dam sy phat triln bin vung ciia quflc gia Ciing vdi chinh sach thuc hifn phap luat, ap dung phap luat, Nha nudc da de ra chinh sach van d^ng huong udc, tgp quan trong quan ly xa hpi nong thon Vifc thyc hien chinh sach van dung hucmg udc, tap quan co y nghia nhu la cong
cu bo sung phap luat trong quan ly xa hpi d nflng thon Bai vilt phan tich, danh gia thyc trgng chinh sach thuc hifn, ap dyng phap lugt va van dung huong udc, tgp quan frong quan ly xa hpi d nflng thon va nhihig vln dl dang dat ra
' Tir khda: Chinh sach; phap luat; huong udc; quan ly xa hpi; nong thon
1 Thvc t r ^ n g chinh sach t h u c hien, ap
dung phap luat a ndng thon Viet Nam
hien nay
Mufln quan ly xa hfli bang phip luat va
theo phip luit cin cd mflt he thong phip
Iuat dly dti, dflng bfl, cong kbai, minh bach
Trudc day, trong thdi ky chiln tranh va co
che ke hoach hda tip trung bao cap, hoat
dpng lap pbap ctia Quflc hpi Viet Nam cdn
d phgm vi rit bgn chfi Quflc bpi cic khda
chti ylu tap trung vao viec thdng qua cic
dao luat vl tfl chfic: Luit Td chftc Quflc hpi,
Luit Td chfic Chtnh phu, Luit Tfl chuc Tda
an nhin dan, Luit To chftc Vien Kilm sit
nhan din, Lugt Tfl chftc Hfli ddng nhin dan
va Uy ban nhan dan
Ngiy nay, Vipt Nam da cd mpt he tbflng
van ban pbap luit kha dfl so Nudc ta di
ban hanh cic dao luit dilu chinh tit ca cic
Iinh vuc kinh tl, chinh tii, xa hfli, an ninh,
quflc phdng, hinb chinh, hinh sy, dan sy
Tinh tnmg binh mdi mdt ky hpp trong thdi gian gin diy cfta Quflc hfli thao lugn va thflng qua tfi 12 den 15 dgo luit, bp luit Day la nhihig con sfl vfl cung an tupng Phip luat can phii dupc tfln trpng va thyc hipn trong cudc sflng tbi muc dich ctia viec ban hanh pbap luit mdi dgt dupc O nudc ta phap luit dupc thuc hien thflng qua cic hinh thuc chu yfiu la tuan thu pbip Iuat, sft dung phip luit, chip hinh phap luit (thyc thi phap Iugt) vi ip dyng p h ^ luit,
trong dd:
Tuin thu pbap Iugt la hinh thuc thyc bifin phap luit raa chu the quan h? pha^) luit
'*' Phfi ^do su, tifin sT, Hpc vifn Khoa bpc \i hpi
DT: 0982323511 Email: phnghi53@yahoo.coin.vn
Bdi vifit trong khufin kho de tai "Nghiin aiu de xudt gidi phqp dp dyng lugt phdp vd huang udc ldng trong qudn ly xd hgi ndng thdn mdi" do Chuong
trinh Khoa hpc vd Cfing nghf phye vy xdy d^ng nong thon mfii giai doan 2011 - 2015 tdi trp
Trang 2kifim che, giu minh khong lira nhung gi ma
phip luit cam
- Sfi dyng ph£^ lugt la hinh thuc ma chft
the thyc hien pbip luit thyc hien quyfin
dupc phap luat quy dinb Duong nhien, cac
quyen la cich xfi su ma phap luit cho phep,
phap luat thfia nhan Bdi viy, chft the cd tbfi
thyc hifin hogc khflng thyc hien cac quyfin,
tu do dd tuy theo y chi cua minh, chft phap
luat kbflng bat buflc chft the phai thyc hien
- Chip hinh phip luit (thyc thi pbap
luit) li hinh thuc thyc bien phap luat mi
cbu the thuc hien nghia vu phap ly tbeo quy
dinh cfta phip luat
- Ap dpng pbap lugt la hinh thuc ma chft
thfi li cic CO quan nbi nudc cd thim quyen,
cac ci nhin dupc Nba nudc trao quyfin ip
dyng cac quy pham phap luit vao trudng
hop cy thfi doi vdi ca nhan, td chftc dfi giii
quyet quyfin, ngbia vu cho hp ho^c xac dinh
tiich nhiem phap ly dfli vdi bp''\
Vipt Nam da de ra chinh sach thyc hipn
pbap luat ndi chung va thyc Men pbap lugt
d nflng thfln ndi rieng Hien phap Vipt Nam
va hang logt cic van ban phip luit, tiong do
cd Luit Phfl bien, giio due phip luit ngiy
26 thing 12 nim 2012 viNghi dinh so
59/2012/ND-CP ngiy 23 thing 7 nim 2012
cfta Chinh phu ve theo doi tinh hinh thi
hanh phip luit
Luat Phfl bifin, giao due phap luit nim
2012 nay quy dinh quyen dupc thflng tin ve
pbap luit vi tiich nhifim tim hifiu, hpc tap
phap lugt cua cong din; npi dung, hinh thfic
phfl biln, giio due phap luat; tiich nhiem
Ciia CO quan, tfl chfic, ci nhin cd thim
quyln vi cac dieu kien bio dim cho cflng
tac phfl biln, giao due phap lugt
Cflng dan cd quyln duac thdng tin vfi
phap luat vi cd trach nhiem chft ddng tim
hilu, hpc tip pbap Iugt Nhi nudc bao dam,
tgo dilu kien cho cflng din thyc hien quyfin
dupc tbflng tin ve pbap luit
Ddi vdi ngudi dan d vung din tflc thifiu s6, mifin nfti, vung sau, viing xa, bien gidi, ven bifin, hai dio, viing cd dieu kien kinh te
- xa hfli dac bifit khd khan va ngu din, viec phfl biln, gjao dye phip luat can cfi vao die dilm cfta tung doi tupng ma tip trung vio cac quy dinb phap luit ve dan tpc, tfln giao, tiach nhipm tbam gia bao vfi, gift gin an ninh, quflc phdng, bien gidi, chft quyfin quflc gia, biln, dio, tai nguyfin, khoang san
va cac ITnh vuc pbap luit khic gin lien vdi ddi sflng, sin xuit cua ngudi dan Hogt dpng phfl bifin, giio dye pbap luit cbo ngudi dan d vimg dan tpc thieu sfl, mien nui, viing siu, vung xa, bien gidi, ven biln, hai dio, vung cd dieu kien kinh t l - x a hdi dac biet khd khan va ngu din dupc chu tipng thyc bifin tbflng qua hda giii d co sd, tip giftp phap ly luu dpng; tu vin pbip luit, cung cap mien phi thflng tin, tai lifiu phap lugt bang tieng din tpc cho dflng bio din tpc thieu sfl; Iflng ghep phfl bien, giao dye phap luit frong cac hogt dflng van hda truyfin thflng
Uy ban nhin dan cac cap tfl chiic pho bien, giao due phap luit cho ngudi dan d vung din tpc thieu sfl, mifin nui, vimg sau, vftng xa, viing cd dilu kien kinh tl - xa hfli dgc biet khd khan va ngu dan; chu tri phfli hop vdi bfl dpi bien pbdng, cflng an, hai quan, kiem lim, canh sit biln tfl chuc phfl bien, giio due pbap lugt cho nguoi din d kbu vyc bien gidi, ven biln va hai dio
De bao dam viic thi hdnh phdp lugt cdn
CO nptdn nhdn luc ldm cdng tdc tuyen truyin, phd biin phdp lugt cho nguai ddn ndng thdn Cac dia pbuong tiln hanh ri
soat, tfl chuc dao tgo, bfli duong cho dpi ngu can bfl tbuc hien cflng tac tuyen truyin
Khoa Li4t, D^i hpc Quoc gia Hd NSi (2005),
Gido trinh Ly lugn vi Nhd nudc vd Phdp ludl Hd
Npi, tr.78-79
Trang 3phfl biln phap luit (TTPBPL) cho ngudi
dan nong thfln va dflng bao dan tpc thieu sfl;
md cac ldp tgp huan dao tao, boi duong
nghiep vy phfl bifin pbap luat, cung cap tai
lieu va cic kien thftc pbip luat cd lien quan
cho dpi ngfi can bp tai trung uong va cac
sd, ban, nganh cua eic dia phuang lim
cong tic TTPBPL cho ngudi dan nflng thon
va dong bio dan tpc thifiu sfl Tren co sd
dd, cac dia phuang da tgp huan dao tao, bfli
duong nghipp vy phfl bifin phip luit cho dpi
ngu bao cio vifin, tuyen truyfin vifin tgi co
sd Bfin cgnh do, tbflng qua Iflng ghep cic
hpi nghi, hpi thio, cic ldp tap huan nghiep
vu ma tfl chftc dio tao, bfli dudng kifin thftc
phap luit chuyen nganh va kj? nang tuyfin
tmyln, phfl bien pbap luit cbo dpi ngu can
bp lam cflng tic TTPBPL cbo ngudi dan
nflng thfln
Khdo sdt xdc dinh nhu cdu ve ndi dung
vd hinh thiec thuc hiin tuyin truyin, phd
biin phdp lugt cho ngu&i ddn ndng thdn
Dfli tupng khio sit gflm: can bfl lim cflng
tac TTPBPL cip tinh, huyen; cin bfl lam
cflng tic TTPBPL d p xa; ngudi dan ndng
thfln Can bp xa, Chi bp tiifln bin; dflng bao
dan tpc tiiilu sfl Can bfl Hpi Nflng din tinh,
huyfin; cin bp Hpi Nflng din co sd Ban
Chu nhifim ciu lgc bo, tuyen truyin vien ca
sd; can bp Tnmg tim tu vin phap luit ciia
Hpi Nflng dan; hpi vien, nong dan Can bp
cac d p HOi Phy nft, cin bfl cua mflt sfl sd,
ban, ngknh, doan thl cip tinh tryc tilp lam
cflng tac TTPBPL; hpi vien, phy nfi la nflng
d&i, dflng bao din tflc thifiu sfl
Qua dd, di xac dinh duoc thyc frang vi
nhu clu tim Iiifiu cac npi dung phip lugt,
cac hinh thfic thich hap dfi phfl biln cic nfli
dung phap Iugt theo nhu clu cua ngudi d^i
nong tiifln vi ding bao din tflc thilu sfl;
thyc frgng va nhu cau dao tao cua can bp
lam cflng tac TTPBPL cbo dfli tupng tifin;
cic dja dilra cd dft dilu kifin xiy dung mfl
hinh thi diem dfi phfl bien phap lugt ve nong nghiep phat trifin nflng thfln (NNPTNT)
Xdy dung md hinh thi diem thuc hiin TTPBPL cho ngudi ddn ndng thdn
Npi dung boat dflng cfta mfl binh gflm: TTPBPL cho ngudi din nflng thfln tgi mo hinh; dao tao, ning cao ky ning nghiep vu TTPBPL cbo dpi ngu cin bfl cua mo binb; cung cap tii lieu phip luat; hfl frp trang thiet hi phuc vu cho hogt dpng TTPBPL tgi mfl hinh; dinh gia, tflng ket rftt kinh nghiem
va trien khai nhan rflng mfl hinh
Uy ban Dan tflc xiy dyng mfl hinh TTPBPL tgi cic xa mien nui thong qua viec
md ciu lac bp phip luit voi viec cung cap diu sach van ban phip luit, tfl sinh hogt, tuyen truyfin phfl bifin phap luit tip trung theo cbuyen dl vi dupc thyc hipn thirdng xuyen hang thing; boi dudng kiln thuc, cung cap kip thdi cic quy djnh mdi cfta pbap luat cho can bp tuyfin truyen vien, hda giai vien d ca sd dfi tuyen truyen cbo nhan dan vi phuc vy cflng tic hda giii d ca sd Ngudi dan cd nbu cau tim hifiu phip luit diu cd quyln tham gia sinh hogt Ciu Igc bfl
va tilp cgn cac vin bin phap luit mflt each nhanh chdng, thuan lpi
Trung uang Hdi Nflng din Vipt Nam (TLTHNDVN) xay dyng cic mfl hinh dilm
"Vgn dpng nflng din chap hinh phap luit
vl bao ve ngufln lpi thuy san", xay dyng mfl hinh dilm "Van dpng nflng dan chap hanh phip luit ve san xuat cac sin phim nflng nghipp sach" Tgi cSc mo hinh nay, ngudi din duac cung cap cic thflng tin phap luit bing nhilu hinh thftc khac nbau nhu tfl chuc cac bufli TTPBPL, phfli hpp tfl chftc tu vln phap luit, tip giftp phip ly, cic Idp tip huin, hfli nghi diu bd, tuyen truyfin tten he thflng loa truyin thanh, tuyfin tinyln bing pa nfl, ip phich, td roi, td gap p h ^ luit, cic cufln sfl tay hfli - dap, xiy dung va duy tri boat dflng cua cac Ciu lac bp phap
Trang 4lugt, tfl chfic thi tim hieu phip luit Npi
dung tuyen truyfin, pho bien dupc tap trung
vao cac quy dinh cua phip lugt ve tifiu
chuin, quy chuin an toin thyc pbam; cic
quy dinh ve khai thic, danh bat, nufli trflng
thuy, bai sin dflng tbdi bio ve ngufln lpi ve
thliy sin, ve mfli trudng; nhiing kien thfic
khoa hpc ky thuit tiong sin xuat va che
bien nflng sin Tfi cic hogt dflng tuyfin
truyen, phfl bien gdp phan nang cao nban
thftc, y thfic chip hinb phap luit cua ndng
din, ngu din qua dd cac hfl da huong fing,
dflng thugn ky cam ket "san xuit san pham
nflng nghiep sgch" va cam ket "bao ve
nguon Iai thuy, hii sin tiong khai thic,
danh bat, nufli frflng" Diy ciing la each
thftc dfi nguoi din tu giac tham gia va thay
dupc y thftc tiich nhiem ciia mfli ca nban,
mfli bfl gia dinh tiong thyc thi cac quy dinh
pbip lugt ve san xuat luang thyc, thyc
phim hay khai thac, dinb bit thfty, hii san
qua dd thuc diy phat trifin san xuit theo
hudng bin vtmg, ddi sflng cua nflng dan,
ngu dan ngay cang duoc cai thifin
TU^HPNVN xiy dyng mfl hinh Cau
lgc bp "Phu nu nflng thfln vdi phip luit",
"Phy nu din tflc vdi phip lugt" de phfl bifin
phap luit cbo ngudi dan nflng thfln va dflng
bao din tpc Cic boat dpng cbu yeu la tfl
chftc tap huin cho ban chu nhiem Ciu lgc
bfl, phfl bien p b ^ luit cho thinh vien Cau
lac bp vi ngudi dan dia phuang, hfl trp cac
tiang bi thiet bj phye vy hogt dpng phfl biln
pbip Iuat ciia Cau lgc bp Mfl hinh nay cd
hieu qui tflt, cd sfic lan tda ttong ddi sflng
cfta cflng dong din cu vi ciu lgc bp la noi
quy tu, tap hpp dflng dao thanh vifin tham
gia nhim giao luu, hpc hdi, tgo difin dan,
trao dfli, pho bien kien thuc phap lugt va van
dyng p h ^ luit, tu van pbap Iugt va trp giftp
phap ly cho phu nfi, gdp phin tuyfin truyfin
van dflng hpi vien, phy nfi va ngudi than
khong pha rimg lira nuong ray, khong tham
gia truyin dao trii phep, khflng nghe theo ldi xiii giuc cua ke xiu, hgn che tham gia khieu kifin dflng nguoi
Td chuc phd biin phdp lugt thdng qua cdc hinh thuc phit hgp:
- Tbflng qua hfli nghi, cuoc hpp, tap
huin, gidi thifiu van ban
- Bifin soan va phat banh tai lieu phap luat
- Tuyen truyen, phfl bien trfin bio chi, tifin phuang tien thong tin dgi chiing Bfin cgnh cac hinh thfic tren, nhieu hinh thftc khac TTPBPL da dupc sfi dyng dfli vdi ngudi din ndng thfln vi dong bao dan tpc thieu so nbu: tu vin pbap luat, tip giup pbap ly, tu van, tip giup luu dpng cho nguoi dan nflng thfln vi dflng bao dan tpc thieu so, thi tira hifiu phap lugt qua mgng
2 Thyc trang chinh sach vgn dung hirong vdc, tap quan trong quan ly xa h$i d nong thfln
Tfi sau Cach mgng thing Tim nSra 1945, nhat la sau nSm 1954, ca ciu tfl chftc I^g
xi phong kien hi bai bd, huong udc khong cdn ca sd dfi ton tgi frong cac lang dang dupc cii tgo theo mfl hinh chinh quyfin dia pbuong kieu mdi frong do d p co sd la xa bao gflm nhilu ling chfi khflng phfl biln
mflt ling nhu truac Tft cufli nhihig nam 80
diu nhimg nim 90 cfta till ky XX, khi nflng thfln Viet Nam budc vao thdi ky Dfli moi vdi viec giao khoan rupng dit cho cic hp gia dinh sfi dung fln dinh va Iiu dai theo Nghi quylt 10 cua Bp Chinb tii, tiii viec quin ly kinh t l - x a h$i d cic thfln lang cung bit diu chuyen dfli Hp gia ffinh khflng cdn phu thupc nhilu vao hpp tie x3 nflng nghifip nbu trudc ma duac ttd lai la dan vi kinh te ty chu, trd thinh tie nhin quan tiyng dfli vdi sy phat tiiln kinh tl xa hpi d nflng thon Cimg vdi sy tbay dfli vj tri cua
hfl gia mnh, vj tii va vai tib quan l;^ kinh tl
xi hpi cua ling tiifln cu - vdi tinh each la cpng dong dan cu gin kit tmyln tiiflng cd
Trang 5thiet chfi tfl chftc rifing, phong tyc tip quin,
tin ngudng, tim ly, tinh cich rifing ctia xa
hpi - da din din duoc khing dinh frd lgi
Clac mat ticb cue tiong hogt dpng thfln lang
nhu cac thifit che din chii hda vi van hda
truyin thflng, tin ngudng dupc day manh,
nhung dflng tbdi cac yeu tfl tieu cue nhu
tranh chap dit dai, tbdi gia truong ddng hp,
cac loai te ngn ciing dupe dip frdi day
Trong boi canh dd, hucmg udc - mot binh
thiic bfl sung cbo phip luat, dap fing nhu
cau va each tiiftc quin ly mdi d thfln, bin
-din luc niy bat diu cd dieu kien phuc hfli
trd lgi v& phat huy tic dyng
Tft giua nhiing nim 90 cfta tbfi ky XX
trd di, thiy ro y nghia tich cyc cfta huang
udc mdi trong viec quin I^ xi hfli va thyc
hiOn din chu d nflng thfln, Dang va Nha
nudc da danb mpt sy quan tam, diu tu thich
dang Tgi Hpi ngbi lan thfi 5 Ban Chip
h&nh Trung uang Ding khda VII tiiang 6
nam 1993, Tflng Bi thu Do Mudi da nhin
manh: "Nhi nudc d n sdra nghien cfiu dl ra
quy chl tbicb hop vdi chftc ning, vai frd
cua xi, thfln, xdm, lang bin frong tinh hinh
mdi Trong khuon khfl ctia pbap Iugt va dya
vao nhung quy dinh niy cd thl xay dyng
huong udc lam ca sd dl tfl chftc quin ly
hogt dOng kinh tl, xa hpi, an ninh quflc
phdng " Van kifin H0i nghj niy da ghi:
"Khuyin khich xay dyng va thyc hipn c^c
huong udc, quy chl ve nep sflng vin rainh
d cac tiifln xi"*^' Ngiy 18 thing 2 nam
1998 Bp Chinh tii di ra Cbi thi sfl
30/CT-TW vl xiy dyng va tbuc bipn Quy cbfi dan
chu d CO sd, ting cudng cflng tic quin ly
Nhi nudc dfli vdi vific xiy dyng vi thyc
hi?n huong udc, quy udc Tilp sau dd,
dudi gdc dp toin quic, Nhi nudc da ban
hinh mpt loat van bin chi dao, hudng din
viOc ban hanh va thyc hi$n huong udc, quy
udc nhu: Ngbi djnh sfl 29/ND-CP ngiy 11
thing 5 nim 1998 cua Chinh phu ban
hanh Quy chfi thyc hien dan chu d xa, Cbi thi sfl 24/CT-TTg ngay 19 thing 6 nim
1998 cua Thu tudng Chinh phu ve vific xiy dyng va thyc bien huong udc, quy udc ciia ling, ban, thfln, ip, cum din cu, Thflng tu lien tich sfl 03/2000/TTLT/BTP-BVHTT-BTTUBTUMTTQVN ngay 31 tiiang
3 nim 2000 cfta Lifin bp Tu pbap Van hda
- Thflng tin Ban thudng true Oy ban trung uong Mat tran To quflc Vipt Nam hudng dan viec xay dung va thyc bifin hyang udc, quy udc cua lang, ban, thfln, cum dan cu Vdi nfin tang phip lugt nay, huong udc moi
da dupe chinh thfic hda vi dupc trien khai mgnh me tifin toin quoc
- v l ten gpi; tbflng nhit gpi chung li Huong udc hoac Quy udc (ling, thfln, ip, bin, cum dan cu)
- v l CO clu: cd Ldi ndi diu ghi nhgn tmyln thflng vSn bda cfta dja phuong, nfiu rayc dich cua viec xay dyng huong udc Tiep din la cac chuong, rayc, dilu, khoan, difim
- v l npi dung, huong udc la vin ban quy phgm xi hpi ttong dd quy dinh cic quy tic xft sy cbung do cpng dflng din cu cimg thda thugn dit ra dl difiu chinh cic quan he xi bpi mang tinh ty quan cfta nhan dan nham gifi gin va pbat huy nhiing phong tuc, tip quan tflt dep va truyfin thflng van hda fren dia ban lang, ban, thfln, ap, cym dan cu, gdp phin hfl ttp ticb cue cho vipc quan ly nhi nudc bing phap luit
Cho din nay d pbam vi chung toan quflc, phip luit dilu chinh vific ban hinh va thyc hien hucmg udc, quy udc da khi day du vi chi tilt 6 cic tinh, thanh phfl tiirc thuflc trung uong cung quan tam chi dgo, ra nhihig van ban hudng dSn chi tilt ban van
dl nay phu hop vdi hoan canh cu thfi ciia
'^' Dang Cfing san Vi?t Nam (1993), Vdn kiin Hgi nghi ldn thir 5 Ban Chdp hdnh Trung uang khda VII,
Nxb Chinh trj qufic gia, Hd Npi, tr.73
Trang 6timg dia pbuong Tren ca sd dd, vific ban
binh va thyc hifin huong udc ve co ban da
di vio nfi nep'^l
Cung vdi cbinh sacb van dung huang
udc, d nudc ta Ding va Nha nudc cdn de ra
chinh sich ap dyng tip quan ttong quin ly
xa hpi (chft yeu li d vftng nong thfln):
Tap quin da dupc gbi nhgn ttong cac vin
ban phip luit nhu Bfl luit Dan su, Bfl luit
Thuong ragi, Luit Hfln nhan va (jia dinh
Diy li CO sd phip ly quan ttpng cho cdng
nhgn, ap dyng tip quan phap d Viet Nam
Cac quy dinh vfi tap quin va viec ap
dyng tip quin de dieu chinb cic quan he xa
hpi dupe dupc xac dinh kha toan difin frong
cic Iinh vyc din su, hon nhan va gia dinh,
thuong mgi Tuy nhien, tip quin phip
khflng duac cflng nhin vi ip dyng ttong
cic linh vyc hinh sy, hinh chinb vi cac linh
vyc khic Cac quy dinh vfi viec cho phep ip
dyng tip quan dfi dieu cbinh cic quan he xa
hpi thfi hipn su thfia nhin cfta Nhi nudc dfli
vdi cic quy tic xft sy duac hinh thanh rapt
cich ty nhifin ttong ddi sflng xa bfli
Cic quy dinb vl he thflng danb myc cac
phong tyc tip quan tifin bfl dupe khuyen
khich phit trifin vi cic danh muc phong tuc,
tgp quin lgc hiu phii loai bd di d u ^ ban
hanh Danh rayc nay da dupc de cap trong
Nghi quylt sfl 32/2002/ND-CP ngiy 27
thing 3 nira 2002 ciia Chinh phu ve ip
dyng Lugt Hon nhin va Gia dinh dfli vdi
cac din tflc thieu sfl
3 Nhirng v^n de dat ra trong thuc tien
thi^c hi^n, ap dung phap Iugt va vgn
d^ng hutnig vdc, t^p quan ff nong thon
3,1 Nhihig van di dgt ra tu thifc tiin
thtfc hifn, dp dtfng phdp lugt & nong thdn
Trong tbdi gian qua, de khing dinh bin
chit tot dep ciia che dp ta frong vific cham
lo, bio vp va pbat huy diy du cic quyen
con ngudi, quyen cdng din, Hien phip
nudc C^ng hda xa bpi chu nghia Viet Nam
quy dinh: "CJ nudc Cpng hda xi hfli chu
nghia Vipt Nam, cac quyen con ngudi, quyln cong din vl chinh tri, dan sy, kinh
tl, vin hda, xa hdi duac cflng nhin, tfln trpng, bio vfi, bio dam theo Hifin phip va pliap luit"*"*; 'TMha nudc Cdng hda xa hpi chu nghia Viet Nam la nbi nudc phap quyln xa hdi chft ngbia ciia Nhin dan, do Nhan din, vi Nhan dan"; "Nha nudc dupc tfl chftc va hogt dflng theo Hiln phip va pbap lugt, quin ly xa bfli bang Hien p h ^ vi pbap luat"*^^ "Nha nudc bao dam va phat huy quyfin lim chu cua Nhin dan; cflng nhin, tfln tipng, bio ve vi bao dim quyen con nguoi, quyen cflng din; thyc hien myc tieu din giau, nudc mgnh, din chii, cflng bing, vin minh, raoi ngudi cd cuoc sflng Ira no, ty do, hgnh phuc, cd dieu kifin phat triln toan difin"'^\
Dfi thyc hien cac quy dinh trfin day cua Hiln phip, kip thdi ho tip, giup dd ngudi dan ttong tilp can, sft dung phip luit de thyc thi quyfin, ngbia vu cua rainh cimg nhu bao vfi cic quyln vi lpi ich hop phap, tham gia quin ly nhi nudc, quin ly xa hfli ngay tgi dia ban xa, Nha nudc timg budc thiet lgp
vi khflng ngimg hoan thifin cac thiet che thyc thi phip luit, bfl ttp ngucn dan tfayc thi phip luit (thifit lgp bfl may tfl chuc, bfl tri can bfl, bio dam ca sd vat chit; hoan thien quy trinh giai quyet yeu cau, vudng mic phip luat, thiet lgp cac co chl bao ve, ho trp ngudi dan thyc thi phip lugt ) Tuy nhien, tiiyc tl cho thiy viec triln khai, thi banh cac thiet chfi cung nbu cac dilu kien bao dim
de ngudi dan d nflng thfln tilp can phip luit, sfi dung, thyc hifin phap luit dang g^ip nhiing khd khin, vudng mic, hgn chfi, bit
"* Biii Xudn Due (2003), "Huong ufic mfii: NhiJng
van Ak dilu chinh phdp lu§t", Tgp chi Khoa hgc
Phdply,%oA,tr.\\-\2
*^*Dieu 14 Hi&i phdp ndm 2013
'*' Khodn 1 Dieu 8 Hien phdp 2013
"'Dieu 3 Hien phdp 2013
Trang 7cap; vi phgm phip luit dien ra thuong
xuyen, frit ty an toan xa bfli khflng duac
bao dam:
Mdt la, tinh ttang vi pham pbip luat
difin ra d nong thon la khi phfl bifin Dd la
cac vi phgm phip Iuat vfi dit dai, ve hon
nhan, gia dinh, ve phdng, chflng bgo lyc
gia dinh, ve an toan, ve sinh luong tbuc,
thyc phim, ve tin nguong, tfln giio, vfi ttat
ty, an toan giao thflng Cac tranh chip,
nhit Ii tranb chap dit dai dien ra khi cing
thing, quyet lifit d mpt sfl dia phuang Cac
vy an hinb sy lifin quan dfin ttflra, cudp,
danh chem nbau lim anh huong ldn den
sinh mgng, tai sin cfta con ngudi, cflng dan
va trat ty an toan d dia phuang
Hai Id, dpi ngu can bfl, cflng chftc, vien
chuc cua be thflng chinh tri d co sd, nhit la
dpi ngu cflng chuc chuyen mon cip xa cdn
yeu ve trinh dp chuyfin mfln va thieu vfi sfl
lupng Vi vSy da cd nhfing tic dflng, anb
hudng nhit dinh din viec td chftc thyc thi
phap lugt, dua phip luit vao cufle song
Cling nhu chit Iupng, hieu qua thyc tbi cflng
v\i, nhit la yfiu cau cua cflng tic ban hinh,
phfl biln van bin phap luit, giii quylt cic
thu tycj vy vipc hinh chinh - tu phip phye
vy quyln lpi chinh ding cua nguoi din
cung nhu ho ttp chuyen mfln, nghifip vy cho
cac boat dpng phip luat raang tinh xi bfli,
cpng dong Theo quy dinh tbi d cip xa,
moi xa, phudng, thi trin it nhat phii cd 01
cong chiic/01 chirc danh; dfli vdi xi, phudng,
thj tiin cfl dflng dan cu thi cd the bfl tri tfi 2
den 3 ngudi cho raoi cbuc danh cflng chfic
Tu phap Hp tjch, Dia chinh Xay dyng
-Dfl thi (hoie Nflng nghiep va Mfli trudng )
va tiieo Quylt dinh sfl 04/2004/QD-BNV
ngay 16 thing 01 nim 2004 cua Bp tnrdng
Bp Npi vy ve vipc ban hanh quy djnh tieu
chuan cy the dfli voi cin bfl, cflng chuc xa,
phudng, thj trin thi 07 chftc danh cong
chuc thudc Uy ban nhin din cap xa duac
tuyen dyng lan dau phii cd trinb dp trung cip chuyen nganh frd lfin Tuy nhien, qua so lieu thflng kfi cho tbay, sfl luong cflng chftc
c ^ xi cdn rit thifiu, trinh dp chuyfin mfln nhifiu cflng chftc cdn hgn cbe, chi cd 11.723/15.249 (76,9%) cflng chftc Tu phip -Hfl tich dat tieu chuin theo quy dinh; 84,2% cflng chuc Tai chinh - Ke toan; 80,6% cflng chuc Van phdng - Thflng kfi; 76,1% cdng chuc Van hda - Xa hfli; 82,7% cong chftc Dia cbinh - Xiy dyng; 68,5% Truong Cflng
an va 91,3%, Cbi huy trudng quan sy cd trinb dp chuyfin mfln nghipp vy tu tnmg cip frd lfin Dfli vdi cac tinh mien nui phia Bac, cbi cd khoing 70% cdng chftc Tu phip - Hp tich d cap xa dat tieu chuin fren, ngay ci dfli vdi 5 tinh, thanh phfl tryc thuflc Trung uong thi ty le cflng chftc tu p h ^ - hp tich dat chuin cung chi khoang 80%*''
Ba Id, cac thilt chl hd tip, giup da ngudi
din tifip cgn phap luit d ca sd phit tiifin
chim, chit lupng khdng dflng deu (5 mpt
sfl dia phuang, co chfi phfl bien, thflng tin, hfl tip giii quylt vudng mic phip luit, thyc hifin quyln lim chft cua nguoi dan tgi co sd chua dupc triln khai dflng bfl, hifiu qua mang lgi chua cao Tbeo kit qui dilu ti^ kbao sat cho thiy, chua din 50% xi, phudng, thi ttln triln khai tiiyc hifn trp giup phap ly luu dflng trong nam; d nhilu dia bin, hogt dpng frp giup pbap ly hudng
vl ca sd chua dupc phu sdng; ty lfi ngudi din bilt vl cac van ban phip luat mdi cd lien quan din quyln va nghia vy co ban cua cflng dan ciing nhu dupc tham gia y kien vao cic chuong trinh, dy an kmh tl - xi hpi tten dia ban d nhilu xi, pbuong, thi tran chua din 30%; kbflng it cau lgc bfl vl phip lugt boat dflng cdn d m chimg, mang tmh
^ BO Tu phap (2012), Bdo cdo: Mgt sd vdn M chung vi chudn muc tiep cgn phdp lugl cda ngudi ddn lai ccr sd, Hd Npi, tr.2
Trang 8hinh tiiftc; nhieu thfln, ban, cym din cu
chua trien khai xay dyng huong udc, quy
udc vi npi dung huang udc, quy udc cdn
chua bam sat tinb hinh phat trien kinh tfi
-xi hfli cua dia phuong'^
Bdn Id chit Iupng hoat dflng thyc thi
cflng vy de bao vfi cac quyfin, lpi ich hap
phap cua cflng din ciing nhu ho tto, giftp dd
ngudi din thyc hifin quyen vi nghia vu tu
phia cic ca quan, cin bd, cdng chftc nha
nudc cdn ban chfi Vific thuc hien quy trinh
giai quyet thu tuc hinh chinh vi cac vudng
mic phip luit cdn nhieu bit cap O nhieu
dia pbuong, ty Ifi giii quylt cac vu viec
hanh chinh, tu pbap d co sd dung thdi ban
theo quy dinh chiem ty lfi cdn thip Cd xa,
phuong, thi trin ty le gjii quyet vy viec
dung thdi hgn chi dgt dudi 70%, thim chi
cd xa chi dat dudi 50% Nguyfin nhin ciia
tinh trgng niy Ii do cong chftc cip xa chua
dat tifiu chuin nghifip vu theo quy dinh
hoac dat tifiu chuin nhung khong du sfl
lupng theo chftc danh
Ndm la, vific ban banh cic vin bin
hudng dan, trien khai va tfl chuc thyc hifin
phip lugt cua chinh quyen ca sd cdn cham,
thieu cac difiu kifin bao dam de trien khai, tfl
chftc thyc hifin Qua khio sat cho thiy,
nhifiu vin ban quy pbam pluq) luit cua Uy
ban nhin din, Hpi dflng nhan din d p xa
ban hanh cd tinh khi thi khdng cao, chua
phu hpp vdi tinh hinh thyc tien va thuin
tipn dl ngudi din thyc thi, vgn dung Mpt
sfl noi, vin ban ban hanh cdn chua dting vl
npi dung vi thfi thftc, chua Iiy y kifin cfta
dflng dao ngudi dan, cic dfli tupng chiu sy
tac dpng, dieu chinh
Sdu la, ca sd vit chit bao dim cho cflng
tac tilp can phap Iuat, su dung phip lugt
cua ngudi din tai ca sd d nong thon cdn rit
thieu thfln, nhit Ii dfli vdi cac tinh mien
nui Cac pbuong tipn lam viec nhu may vi
tinh chua cd ho|ic phai sfi dyng chung; cac
tai lieu phap Iuat, nghiep vu chua ducrc c ^
nhgt thudng xuyen Nhilu nai chua dupc nfli mang Intemet da inh huomg den viec cap nhat van ban phap luat mdi vi su dyng c0 sd dfi heu phip luit mpt cich he thflng, viec ling dyng cflng ngh? tbflng tin, tin hpc trong quan ly vi thyc thi cdng vu cdn it Day chinh la nhfing hgn chfi lam anh huong khflng nhd den chat lupng, hifiu qui thyc thi cflng vy tai cip co sd
3.2 Nhirng vdn de dgt ra ve van dung hirong udc, tap qudn trong qudn ly xd hgi nong thdn
Mdt la, ddi tugng diiu chinh ciia huang udc cdn ldn lgn vdi quy che thtrc Men ddn chu a ca sa Quy che thyc hien dan chu d
xa dupc quy dinh tiong Phip lfinh vfi thyc hanh dan cbu d xa, phudng, thi trin dinh cho chinh quyen cip xi tbuc hifin bio dam quyfin lim cbu ciia nhin dan Cdn huong udc, quy udc la van bin quy pham xi hpi ciia cpng dflng ling, thfln, ip, bin do cpng dflng ban hinh theo hudng dan chung cua Nba nudc
Hai Id, ndi dung huang udc cd phdn cdn
sa sdi, lap lgi phdp lugt vd chU trucmg chinh sdch cua Nhd nudc mgt cdch khd khan, thieu cu the, chua sdt thuc vai diiu Men vd dgc diim cda tung ldng cdu chU trong vdn bdn cdn ndng tinh hd hdo, khdu hieu Cd mpt sfl bin huong udc cd nhfing
dilu khoan khflng dting vdi tinb thin cua
p h ^ luit, can thiep qui siu vao ddi sflng ca
' Theo sfi lifu thfing kfi tgi 7.898 xd, phu&ng ciia 48/63 dja phuong ndm 2011: Sfi xd, phufing dupc trp giup phdp ly luu d^ng Id 2.797, chilm 35,41%; dfing tren dia bdn Id 2.123, chilm 26,88%; sl xd, phir6ng cfi Cau lgc bp trp gifip phi^ ly |d 3213, chilm 40,68% Cfi 8.703 cau lac b0 ve phdp Iugt, trong dfi cfi 73,11% sl xd, phufing cfi mfit trong nhfhig loai cdu lgc bfi vl phdp luat Gdn 10% so xd, phufing cfi thfin, ban, cym dan cu chua xdy dvng
huong ufic, guy ufic Xem: Bfl Tu phdp (2012), Bdo phdp lugt dia ngudi ddn tgi ca sa, Hd Npi, tr.3
Trang 9nhan, di nguoc lgi ci nhiing phong tyc
truyin thflng tfi lau ddi Da cd mpt thdi ky
cd khdng it huang udc thara chi quy dinh
ci nhirng "hinh pbat" vfln khflng thupc
thlm quyen cua cip co sd Nai nay, noi kia
chiing bien tudng thinh mpt thft "le lang"
vdi nghia tieu cyc cua tu nay - do cic ong
trudng thfln, chu tich xa quan lieu, bach
djch, thifiu hieu biet, tiiy tipn dgt ra bat dan
phii tuin theo Cd mpt sfl ban huang udc
quy djnb cic hinh thftc phi, le phi, xfi phgt
mpt cich tuy tifin, bua bii Nay tinh trgng
nay, ve ca ban kbflng cdn nfia
Ba la, tinh thiet thuc, tinh khd thi vd tinh
hiiu qud cua huang u&c mdi & nhieu nai
chua cao Hucmg udc, cd le, can gin vdi
vifc gift gin cic tip quan, tyc If tot dep ctia
dja phucmg; gin vdi cac Ie hpi, bio ve danh
lam thing cinh, di ticb lich sft, bio ve ciy
coi, ben nudc, ho ao, dinh chiia - hfln ciia
lfing que
v l chmh sich ip dyng tap quan, cd thl
thiy nhfing vin de dgt ra sau diy:
ThU nhdt, chua cd phin dinh rach rdi gifia
khai nifim "tip quan" va "tap quan phip"
Khii nifm "tip quan phip" chim dupc quy
djnh trong bit ky vin ban pbip luit nao
Theo each hilu tiiong thuomg thi tap quan
phip dupc hilu Ii cic tip quan tfln tai Iiu
ddi cd tmh phu hpp, tinh phfl bifin da dupc
Nha nudc thira nhgn vi ning lfin thanh luat,
ttd tiianh cac quy tic xft su chung
Thd hai, hlu hit cac quy dinh hien hanh
chi thira nhgn ip dung tap quin ma chua quy
djnh vfi nfli dung tgp quin Trong luc do, tft
thdi Phap thupc, vio nira 1927 Hpi dflng
khao sat tuc If da suu tira va gial dap tren
300 van de ve tgp quin Tai lifiu nay co gia
tii quan trpng iam ca sd cho cic tda an thm
dd ip dyng tap quan khi xet xft trong truong
hpp neu khong cd quy djnh cua phip Iuat
Thd ba, hlu bet cic vin ban phap luat
chua xic dinh dupc cic dieu kien can va dft
de ip dyng tip quin
Thu hr, cic van bin thudng dua ra
nguyen tic ip dyng tip quin la giu gjn bin sac van hda truyfin tbflng vi phat huy phong tyc, tip quin, truyen thflng vi vin hda tdt dep cfta moi din tpc kbflng trii vdi cac nguyfin tic ca ban ciia phip lugt, tuy nhien, cho dfin nay, chua xac dinh dupc thl nao li tifiu chi danb gii ttnh dftng din hay phu hpp ciia cic pbong tyc, tip quan
Tbuc tifin ^ dyng tip quan vao boat dpng xet xft ciia cic Tda an nudc ta cho thiy:
Thu nhdt, tip quan di dupc ap dung
ttong giii quyfit cac vy in dan sy tgi Tda an cic cap so tham, phftc thim hay cic thu tyc xet lai ban in, quyfit dinh da cd hieu lyc phip luit vi tai nhifiu dia phuong khic nbau tiong phgm vi ci nudc
Thii hai, thuc tien cbo thiy tip quin
dugc ip dung de giii quyet nhieu logi tranh chip din sy nhu tranh chap ve di sin thira
ke (vy in tranh chip quyen sft dyng dit vi nhi thd bp tai tinh Hung Yen), hpp dflng (hai vy franh chip lien quan dfin hop dflng giii gift ca phfi d tinh Dak Lak), quyen sd hihi (vy an "Ciy chi 19 tieng"), hay quyfin
uu tifin khai thic dia diem dinh bat hai sin (vy an "Cay chi 19 tifing")
Thir ba, ip dyng tip quan dupc chiing
minh li cich thftc hieii qua trong giii quylt ti-anh chip dan sy, nhit la ttong cic trudng hpp dl giii quyfit vifc ISp cho tiflng ttong khi thilu cic quy dinh phap luat vi sy tbda thuan cua cic ducmg sy
Thu tu, cic Tda in cdn chua cd sy thflng
nhit tiong viec cdng nhin va ip dung tap quan Cic Tda in chua thflng nhit trong vific ip dung tap quin cua Tda in cip tren (nhit la cua Tda in nhan dan toi cao) dfli vdi Tda an d p dudi hay vin dl ip dyng tgp quin tucmg tu cua cic Tda in ngang cap vdi nhau Ngoii ra, viec sfta doi cac tip quan ip dyng tiong hogt dflng xet xft cua Tda an cic d p do su biln chuyin cfta tinh hinh ciing chua dupc tinh din Diy cd till
Trang 10dupc xem la khd kban ca ban khifin vific
cflng nban va ip dung tip quin tiong boat
dflng xet xft cua be thflng Tda in nhan dan
cac cip cdn cbua dat bifiu qua cao
Thit ndm, hiu hit cac tda in cdn gap
vudng mac ttong qui trinh ap dyng tap quin,
die biet lien quan din hai vin dl: (i) xac
dinh tap quin nao dupc cflng nhgn vi ip
dung; (ii) dilu kifin ap dung tap quan Mpt
sd cac difiu kien khic nhau da duoc cic Tda
an dimg dl phii nhan viec su dyng tap quin
tren thyc tl Ngoai ra, vific cflng nhan va ip
dung tip quan trong boat dflng xet xft ciing
ggp phai vin dl la chft thfi nao cd nghla vy
chiing minh kha nang ip dyng tip quin
phap; giai quyfit nhu the nao ttong trudng
hop cic chu the chftng minh khic nhau vfi
kha nang ip dyng tap quan pbap Day la
nhfing vin de rat quan tipng can dupc giii
quyfit dftng din de cd tiie cflng nhgn va ip
dyng cic tap quin ttong hogt dflng xet xft
ciia Tda in mpt each cd hifiu qua
Nhu vgy, cdn kbflng it vudng mac ttong
thuc tien cflng nhgn vi ap dyng tap quan d
nudc ta Nguyen nhan ca bin cua nhiing
vudng raic frong thyc tien cflng nban va ip
dyng tip quan la cic quy dinh pbap Iugt
hifn banh ve tap quin pbap cdn nhifiu ban
chl, khilm khuyit Trong khi do, Tda an
nhin dan tdi cao cung cbua ban banh hudng
dan vl cflng nban tap quan trong cflng tac
xet xfi Them vao do, chung ta chua cd
danh muc tip quin cua cic nudc Hon nfia,
gifia cic Tda in ciing chua ip cd sy phfli
hop chat che vi chia se thflng tin, kinh
nghifim vfi cflng nban va ip dyng tap quan
nhira dgt dupc sy thflng nhat vfi van dfi nay
D I ning cao hifiu qui ap dyng tip quan
phap d Viet Nam, nhfing hgn che, thieu sdt
nay cin dupc giai quyet
Cac vin dl dang dit ra ttong chinh sach
tiiyc bifn, ip dung phap lugt vi van dung
hucmg udc, tap quan ttong quan ly xi hpi d
nflng thfln dupe nfiu frong bai nay ddi hdi
phii cd nhfing giai phip giai quyet nham bio dam hifiu qui cua hogt dflng thyc hien phap luat va sfi dyng huomg udc, tip quan tao ra tott ty xa hpi, bio dam, bao vp quyen con ngudi, quyln cflng dan vi xay dyng nflng thfln mdi d nudc ta trong giai doan hifin nay
Tai lieu tham khao
1 Bp Tu p h ^ - UNDP - VNCI (2008), Bdo cdo
ddnh gid tdc dgng Du thdo Lugt ban hdnh vdn bdn quy phgm phdp lugt, H a N p i
2 Bp T u phdp (2012), Bdo cdo: Mgt sd vdn di
chung ve chudn muc tiip can phdp lugt cua nguai ddn tgi ca sd, Ha Nfli
3 Phan Dai Doan (Chii bien) (1996), Qudnlyxd
hgi nong thon hiin nay - mgl sd vdn di vd gidiphdp,
Nxb Chinh trj qufic gia, Hd Npi
4 Biii Xudn Dinh (1998), Huang udc vd qudn ty
ldng xa, Nxb Khoa hpc xd hpi, Ha Npi
5 Dmig Cpng sdn V i | t Nam (1993), Vdn kiin
Hgi nghi ldn thu 5 Ban chdp hdnh Trung urmg khda VII, Nxb Chinh tri qufic gia Ha Npi
6 Biii Xuan Due (2003), "Huong uoc moi:
Nhiing vdn dt difiu chinh phap luat" Tap chi Khoa
hoc Phdp ly, so 4
7 Khoa Lugt, Dgi hoc Quic gia Ha Npi (2005),
Gido trinh Ly ludn ve Nhd nudc vd Ph^ ludt Hd Npi
8 Nguyin Nhu Phat (Chu bien) (2014), Xdy
dmig hi thong phdp ludt thdng nhdt, ddng bg minh bgch vd hiiu qud trong Nhd nudc phdp quyin Vi$l Nam, Nxb Khoa hpc xd hfii Ha Npi
9 Le Minh Tam (2003), X^ dimg vd hodn thiin
hi thongphdp lugt Viet Nam - Nhirng vdn di ly lugn
vd thuc tien, Nxb Cfing an nhdn dan Ha Npi
10 Ngo Due Thinh (2000), "Lu|lt tuc vfii vific
phdt trien nong thfin hien nay cr Vift Nam", Lugt tffc
vd phdt triin nong thdn hiin nay a Viet Nam, Nxb
Khoa hpc xd hfii Ha Npi
11 Ddo Tri Cc, Pham HOu Nghi (1993), "Quy uoc ldng, mpt yfiu tfi quan Upng trong hf thfing cac quy tdc difiu chinh cdc quan hf xd h^i fi nong thfin",
Xdy dgng quy udc ldng vdn hda a Ha Bdc, Sfi Vdn
hfia, Thfing tin vd Thfi thao Ha Bdc